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TESTIMONY
Stabilization and
Reconstruction Civilian
Management Act of 2004
JAMES DOBBINS
CT-218
March 2004
Testimony presented to the Senate Committee on Foreign Relations on
March 3, 2004
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Statement of James Dobbins1
Director of RAND International Security and Defense Policy Center
Before the Committee on Foreign Relations
United States Senate
March 3, 2004
I want to thank you, Mr. Chairman, and the Committee for have invited me here today,
for having taken up the subject of postconflict stabilization and reconstruction, for having
organized the Policy Advisory Group on which I was privileged to serve, and having
submitted the legislation on that subject which we are here today to discuss. All of us
who served on the Policy Advisory Committee are particularly appreciative of the time
and effort you and Senator Biden devoted leading and participating in our discussions. It
is particularly satisfying to see the results of those discussions reflected so accurately in
legislation you have submitted.
After more than a decade of intense American involvement in nation-building it is right
that Congress and the Administration should be giving thought to how our nation can
perform these unavoidable and important tasks more effectively? The participation in this
Policy Advisory Group of senior representatives from the White House, State and
Defense, of Congressional leaders from both parties, and of former officials from this and
previous Administrations provided unusual, perhaps unique breadth of experience to our
discussions on this topic. I believe that the results of those discussions, and the high
degree of consensus they revealed are well embodied in the legislation you have
submitted.
In our discussions we were able to draw upon the results of work done on postconflict
stabilization and reconstruction by several of our nations leading research institutions, to
include CSIS, the US Institute for Peace, the National Defense University and my own
home, the RAND Corporation. What is striking in this work, as in our discussions, is the
degree of consensus to be found on the essentials – that nation-building in some form will
remain an inescapable responsibility of the international community and its most
powerful member, that we have conducted these missions successfully in the past and are
capable of doing so more effectively in the future, that our most recent efforts have not
drawn fully upon the experience gained, often at some cost, over the past decade, and that
better performance requires both that improved bureaucratic structures for planning and
execution, and sustained investment in the capacity to conduct stabilization and
reconstruction missions. Finally, there was uniform agreement that the successful conduct
1
The opinions and conclusions expressed in this testimony are the author’s alone and should not be
interpreted as representing those of RAND or any of the sponsors of its research. This product is part of the
RAND Corporation testimony series. RAND testimonies record testimony presented by RAND associates
to federal, state, or local legislative committees; government-appointed commissions and panels; and
private review and oversight bodies. The RAND Corporation is a nonprofit research organization
providing objective analysis and effective solutions that address the challenges facing the public and
private sectors around the world. RAND’s publications do not necessarily reflect the opinions of its
research clients and sponsors.
1
of these missions requires a broadly based response from our government, in particular
from both the Departments of State and Defense, and this responsibility cannot be
delegated to a single agency.
In its own recently published history of American role on nation-building over the past
sixty years RAND concluded that: “In its early months, the U.S.-led stabilization and
reconstruction of Iraq has not gone as smoothly as might have been expected, given the
abundant, recent, and relevant U.S. experience highlighted in this study. This is, after all,
the sixth major nation-building enterprise the United States has mounted in 12 years and
the fifth such in a Muslim nation. In many of the previous cases, the United States and its
allies have faced similar challenges immediately after an intervention. Somalia, Haiti,
Kosovo, and Afghanistan also experienced the rapid and utter collapse of central state
authority. In each of these instances, local police, courts, penal services, and militaries
were destroyed, disrupted, disbanded, or discredited and were consequently unavailable
to fill the postconflict security gap. In Somalia, Bosnia, Kosovo, and Afghanistan,
extremist elements emerged to fill the resultant vacuum of power. In most cases,
organized crime quickly became a major challenge to the occupying authority. In Bosnia
and Kosovo, the external stabilization forces ultimately proved adequate to surmount
these security challenges; in Somalia and Afghanistan, they did not or have not yet.
Over the past decade, the United States has made major investments in the combat
efficiency of its forces. The return on investment has been evident in the dramatic
improvement in war fighting demonstrated from Desert Storm to the Kosovo air
campaign to Operation Iraqi Freedom. There has been no comparable increase in the
capacity of U.S. armed forces or of U.S. civilian agencies to conduct post combat
stabilization and reconstruction operations. Throughout the 1990s, the management of
each major mission showed some limited advance over its predecessor, but in the current
decade, even this modestly improved learning curve has not been sustained.”
The reason for this lack of investment is not hard to find. Nation-building has been a
controversial mission over the past decade. The intensity of our domestic debate has
inhibited agencies from making the investments that would be needed to do these tasks
better. Institutional resistance in departments of State and Defense, neither of which
regards nation-building among their core missions, has also been an obstacle. As a result,
successive administrations have treated each new mission as if it were the first and, more
importantly, as if it were the last. Each time we have sent out new people to face old
problems, and seen them make old mistakes. Each time we have dissipated accumulated
expertise after an operation has been concluded, failing to the study the lessons and
integrate the results in our doctrine, training and future planning, or to retain and make
use of the experienced personnel in ways that ensure their availability for the next
mission when it arrives.
If agencies are to make the investments necessary to improve their capacity to conduct
postconflict reconstruction and stabilization missions, they will need, first of all, a clear
sense of their future responsibilities. In the 1990’s, in the aftermath of the Somali
debacle, the US militaries role in nation-building was excessively circumscribed. The
2
State Department was sometimes called upon to manage tasks better left to the Defense
Department -- training the Bosnian and Croatian armies for instance. More recently we
moved to the opposite extreme, with the Department of Defense assuming responsibilities
for a wide range of essentially civil tasks.
The draft legislation we are discussing today represents only a beginning at addressing
this problem, but it is an important start. Both State and Defense need to improve their
skills and increase their institutional capacity to conduct stabilization and reconstruction
missions. But the US military, at least, already has in place mechanisms to study prior
campaigns, including nation-building campaigns, to draw appropriate lessons and to
integrate these in ongoing doctrine and planning. Nothing comparable yet exists on the
civil side of our government.
This legislation is designed to provide State greater authorities and resources to carry out
its responsibilities for postconflict stabilization and reconstruction. But in the long run
agencies will sustain investment only in capabilities that they know will be used. The
next step therefore, is to design an enduring division of labor between State and Defense
for the management of stabilization and reconstruction missions, a division that both
Departments buy into, that both the Congress and the Administration support, and that
both Republicans and Democrats will be content to work within, no matter which
controls the White House or the Capitol. Just as the Goldwater/Nichols Act and preceding
legislation provides the institutional framework through which America goes to war, so,
in my judgment, should a similarly enduring arrangement should be established for the
conduct of postconflict reconstruction and stabilization missions.
This legislation will encourage and assist the Department of State to build up a cadre of
people with the special skills, interests and commitment needed for such missions.
Nation-building always requires a broad array of US agencies to work together
continuously in unfamiliar circumstances, both in Washington and on the ground. Nationbuilding diplomacy is always multilateral, not only in Washington, New York and
Brussels, but also in the field, where the absence of any functioning host government
means even the simplest tasks have to be coordinated locally among a wide range of state
and non-state actors. These actors include not just representatives of other US agencies
and other governments, but also a myriad of NGO’s and an even wider array of local
leaders and would be leaders. These latter must be dealt with individually because the
instrumentalities for dealing with them collectively have disintegrated.
Even low-level officers working in a failed or occupied state deal on a daily basis with
more agencies, more governments and more local leaders than many Ambassadors
Encounter over months in more settled circumstances.
Nation-building also requires the early mastery of both policy and program management.
These two types of responsibility do not come together in most Foreign Service careers
until one reaches the Deputy Chief of Mission level. Nation-building missions routinely
require even relatively junior officers to both administer programs and set policy
3
priorities, often while having to deal with the press and local notables and negotiate with
other governments. These responsibilities must be carried out on the basis of limited
instructions and inadequate communications with Washington.
The scale of programs also normally exceeds those managed by even our largest
Embassies. In the late 90’s aid to both Bosnia and Kosovo was, for instance, larger than
for all the rest of Europe combined. This year aid to Iraq will be larger than that for the
rest of the world combined.
Finally, nation-building takes place in the most dangerous, devastated and generally
unpleasant places on earth.
Traditional diplomacy and crises response tend to appeal to different personality types.
State-to-state diplomacy calls for calm judgment, reflection, patience, attention to nuance,
and carefully crafted prose and disciplined service within a well understood hierarchy.
Failed state diplomacy calls for self-confidence, enterprise, initiative, calculated risk
taking and an ability to work comfortably in highly unstructured environments.
We face here the familiar prototypes of the cowboy and the farmer. They can be friends,
but it doesn’t come naturally. At the moment we have a Foreign Service of farmers, in
which cowboys are regarded with suspicion. The State Departments task, which this
legislation will help them tackle, will be to create an environment in which both types
find a home and rewarding careers.
4